This, the second of our three articles on the role of the karguzar in the foreign relations of Iran, focuses on internal issues, and, in particular, the problems of security. Its main period of study is the years following the Constitutional Revolution during which Iran witnessed a gradual breakdown of social control resulting from severe government weakness. The Revolution, itself the product of financial fragility, led to the virtual bankruptcy of the country, despite the attempts of the Majlis at fiscal reform. Thus by 1910 the government did not have the means to enforce law and order. Problems of personal security placed considerable pressure on people at all levels of Iranian society. This article is, however, concerned with the experiences of the non-elite and the implications for them of financial crisis and weak government. These circumstances were also to have repercussions for Iran's relations with foreigners.